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portfolio | evaluation EVALUATION OF PHARE VET PROGRAMME BG 95.06 "Vocational Education and Training; Education; Research, Science and Technology (VETERST)" in Bulgaria Contract CFT/99/PHA/0018 (European Training Foundation, EU - AMU, Sweden) March 2000 Executive Summary (full report available at ETF - see www.etf.eu.int) The programme BG 95.06 (VETERST) made a significant contribution to the improvement of education and training, and science and technology provision in Bulgaria at a time when educational reform was not a national priority. Such Phare initiatives have been indispensable in enabling Bulgarian experts and educators to keep in touch with international developments as part of the accession of Bulgaria to the EU. The necessity for reform in the Bulgarian education system emphasised the need to upgrade it, thereby valuing its achievements during the phase of transition to a market economy. In comparison with other Phare VET activities in CEE, the Bulgarian VETERST Programme had a positive reputation. Notwithstanding a learning curve, and occasional lack of transparency in decisions on procurement, the largely successful implementation is due to the accumulated management capacity of the Project Management Unit (PMU), predominantly competent consultants, and the management style of the Programme Manager at ETF. The PMU has been a valuable training platform for a number of enthusiastic young Bulgarian managers and staff, who built significant capacity in EU programmes and procedures. This resulted in the creation of such new institutions as the Human Resources Development Centre, and the Leonardo and Socrates offices thus successfully contributing to the improvement of Bulgarian education management. However, while supportive to the programme, policy-making and mainstreaming of pilot results has been so far less successful, and not all components were executed as successfully as envisaged. Objectives The programme with its 7 components was intended "to contribute to economic and social reform in Bulgaria through the development of education, vocational training, science and technology, and to ensure the availability of national human resources for economic and social re-structuring". Nevertheless, the combination of sub-programmes appears to have arisen from a incoherent position of the then Government and thus provided limited potential for synergy: Upgrading VET, Teacher Career Paths, Foreign Language Training, Financial Management for School Education, Development of Science and Technology, School Drop-outs in General Education, a Higher Education Evaluation and Accreditation Agency, a Science Park feasibility study, and the PMU. BG 95.06-01: VET development - 5,10 M€
1 Context A government that soon went out of office had in fact signed the Financial Memorandum for PHARE Programme BG 95.06. The programme was kept on course despite frequent government changes at the outset, by the Long Term Assistance (LTA) and PMU, and since May 1997, a permanent programme authorising officer and dedicated officials in the Ministry's VET Department. 2 Implementation After difficulties during the WP 1 and repeated delays in the first stage of the delivery of equipment, by 1997 the programme proceeded well on schedule. The co-operation between the PMU, the national working groups, the LTA and the programme managers of the European Union at the Delegation (ECDEL) and at ETF although not completely free of frictions, compensated for the delayed set-up of the Steering Committee (mid 1998) and resulted in a smooth procurement and expenditure. At the end of the disbursement period, 99.99% of the total amount of 9 MECU had been spent. A few sub-programmes needed an extension of 6-9 months to terminate disbursement (UVET, FLT, FMSE and the HE Accreditation Agency). 3 Performance Most programme activities proceeded according to the Work Programmes. However the UVET programme only completed work on 18 professions instead of the planned 20/25. Dedicated managers and school staff achieved the completion of the programme. In addition, all but one of the Teacher Career Path (TCP) Centres failed to achieve sustainability and the Technological Unit in Kostimbrod resulted in failure. Much of the reason for the limited dissemination and mainstreaming of pilot curricula to non-pilot classes and to non-pilot schools) results from the problems of TCP. This situation is principally a reflection of wider structural issues in the field of teacher training. These issues and other minor weakness in achievement should be given active consideration by the Bulgarian authorities. 4 Curriculum Development Curriculum development under the UVET project was one of the most successful components of the whole programme. Although this component sometimes failed to maintain clear progress, committed teachers (who will now be awarded a certificate by the Ministry for their new qualifications) developed relevant, flexible and locally adapted standards and modules. However the system of assessment and especially that Quality Assurance verification systems are not yet fully established and further work by the new National Agency for VET (NAVET) will be required to make the implementation of the verification process a guarantee of the quality, and therefore the currency of the new qualifications. 5 Teachers Career Paths The training of the VET teachers was highly focused on the immediate priorities of curriculum development. As a result, dedicated staff handled developed the new standards and modules effectively, thus ensuring the initial implementation of the new curricula. The institutional structure for this project neglected the existing provision for Teacher Re-qualification, with its recognised system of qualifications. The location of the TCP centres under the authority of the Director of the School concerned, implies that the existing successes in some depend on personal initiative solely, but the scarce independence of the Centres can also contribute to the lack of systemic impact. This issue was evident in all the Centres, even the one that was successful in achieving sustainability. As indicated above, the relevant authorities need to take decisive action to build on this limited systemic success. This will require the integration of the scientific expertise of the Universities, and the application of relevant European standards to the initial qualification and continuing professional development of teachers in vocational schools. This development must be accompanied by the necessary implementation of appropriate human resource management strategies. 6 Foreign Language Training All pilot vocational schools do now offer some language training, which firms and investors consider a key qualification. However not enough language teachers are available. The Foreign Language Training Centres should contribute to necessary re-training of teachers at schools where there are not enough specialists. The management of these Centres will need to review their strategy and budgets to ensure their continuing effectiveness and sustainability. The Ministry of Education should recognise the certificates given to teachers after successfully completing the courses at these Centres. In addition, the Ministry is responsible for the resourcing of these Centres, and their integration into the system of Higher Education. The policy of the Ministry should be urgently revised to ensure appropriate professional advice and to implement the required changes. 7 Equipment and Learning Materials The upgrading of the learning resources in the pilot schools was a central part of the programme. It was necessary to support the pilot curriculum. Procurement was subject to complex decision-making structures resulting in administrative delays. However the Bulgarian counterparts and the PMU succeeded in the majority of cases in locating the right equipment and software in the right places. In some cases, however, the specifications were not appropriate to the clients needs and there were consequential problems of servicing and maintenance. For example, the choice of a Sofia Internet Service Provider for all pilot schools in the FMSE proejct was a strategic mistake. It neglected the fact that genuine alternatives existed in other cities, and took no account of the lack of finance in schools to cover long-distance telephone charges for e-mail and Internet connections. As a result, schools outside Sofia have made no use of these connections. Changes in policy and practice need to be made to remedy this situation. The process of drawing up specifications should more client-oriented. The administrative procedures should be simplified. In this context, it is necessary to commend the Directors of the Pilot schools who in many cases have ensured the continuing development of resources through links with local industry and the community. 8 Quality Control and Financial Management The new agency NAVET will be vital to maintain the momentum of upgrading. It is essential that the Quality Assurance process of verification be rapidly completed. There is little evidence that Regional Inspectorates are ready to play the External Verification role that is envisaged and NAVET may wish to reappraise its Quality Assurance system. If this process is to be successful, further work may well be necessary in the area of initial teacher training and continuing professional development. It may be appropriate to extend the development of national vocational standards to meet the needs of all persons engaged in the process of assessment and verification. If possible, this development should also carry academic credit, using European standards. The Evaluation and Accreditation Agency for Higher Education set up in a sub-programme has taken this control function already, and despite the current problems in the HE system, is operational. The Phare 1996 project followed this sub-programme by developing a clear vision for a World Bank loan, which will concentrate on internal Quality Assurance. The pilot financial system is operational in four regions, and awaits extension to a further 20, on a voluntary basis. While income generation is reiterated as one means of financial independence, some friction accompanies the decentralisation of state and regional budgets. Schools welcome financial independence, and the state bodies need to accelerate this transfer of responsibilities in the current financial situation. The Information Management Centre set up under the programme is currently under-utilised. Co-ordination, exchange of experiences, information collection and analysis from the pilot regions and the new regions is a vital part of the decentralisation of school budgets. Responsible officials from the Ministries of Finance and Education should work with this Centre to improve the process of budget delegation. The positive results of the project's Incentives Fund at school level suggests a nation-wide extension and development of this approach. 9 EU Study Visits and Involvement of Social Partners The contact with EU colleagues and the experiences gained during the study visits have positively influenced the course of the programme at pilot school level and above all for individuals ("a new way of conceiving our professions"). If the programme had had a partnership programme, this success were to be sustained and developed. The Leonardo office can build upon this success through a coherent and needs-based approach to supporting links between vocational schools, teacher development centres and institutions, with their counterparts in relevant areas in Europe, including with other accession countries. The efforts to involve national social partners and even major policy makers such as the Ministry of Labour in VET reform have not yet been successful. However in many municipalities and communities level this relationship works. Priority should be given to ensure that the improving links between MES and MLSP are reflected in operational reality at regional and local levels. 10 Dissemination of Results and Development of a National VET Reform Strategy The absence of a legal framework for mainstreaming the experience of the pilot schools inhibited dissemination. Apart from information packages for non-pilot schools in UVET, the top-down dissemination strategy adopted by the consultants did not help this situation, and the opportunity to provide support for this process through the Regional Inspectorates was not fully used. The new VET Law (although drafted with sub-optimal input by the MLSP - see full text in Annex 8) and the new NAVET agency provide concrete opportunities for the future. Involving all stakeholders, especially employers, will be even more important than during the project. It is difficult to see how this can be achieved without also providing a support structure for local partnerships in an increasingly decentralised VET system. The feasibility study on Science and Technology policy under the programme was supportive of the Bulgarian National Development plan 2000-2006. Information on Bulgarian scientific research and international research programmes has recently become available through the establishment of the Bulgarian National Technology Centre and its information server will contribute to national and international networking (www.rtdiserv.acad.bg). The School Dropout feasibility study prepared for a major initiative financed by a subsequent Phare programme in general education. Finally, the plan for the Science Park in Plovdiv is included in a major regional development programme for which implementation is expected over the next few years. 11 International Comparisons and relations The need to maintain clear links with the reform process in other CEE countries is of course important. The Bulgarian National Observatory should continue to act as an important resource in this area. Care should be taken to strengthen interaction between different parts and levels of the Bulgarian VET policy making and implementation system. For example, it could be useful if future research commissioned by ETF supported this process through an investigation by a mixed scientific team of economists and VET researchers of the links between VET reforms, economic development, and the management of the labour market. If the level of local scientific capability is not yet sufficient, some capacity building could take place using appropriate EU measures such as the Framework Programme 5 strand "Improving Human Potential/Socio-economic Knowledge" Stimulation Grant measure. Existing participation of VET researchers in transnational networks could provide the base for an effective system of VET school improvement based on qualitative and quantitative research. 12 Follow up and Conclusions The programme has supported the continuity of reform in a difficult and volatile environment. The ownership of reform expressed by the government is a guarantee that its successes will be sustained. The results of the programme have started the process of upgrading of the Bulgarian education system, especially to meet the requirements of the acquis communautaire to facilitate accession of Bulgaria to the EU. Projects, follow-up initiatives and regional development plans are crucial to ensure the progress of education and training provision, especially to strengthen continuing VET, which is an important component of these requirements. This executive summary has indicated priorities and approaches to Bulgarian partnerships with colleagues from elsewhere within Europe. This will involve a gradual shift from the existing system of funding from donors to a system of funding transnational partnerships, which meet the interests of the EU, the accession countries, and other partnerships. Further detail and recommendations are to be found in the following chapters and annexes.  back to top |